The package was the product of nearly a year’s worth of work led by Tom Ridge, head of the Department of Homeland Security (previously head of the White House Office of Homeland Security), and Christine Todd Whitman, administrator of the Environmental Protection Agency.

Both had been governors of northeastern states (Ridge of Pennsylvania and Whitman of New Jersey) with a large number of chemical plants, and this only increased their concern about leaving such facilities unprotected. EPA staff felt such fears even more acutely: agency data showed that at least 700 sites across the country could potentially kill or injure 100,000 or more people if attacked.